Brumadinho disaster: contributions to public policies and sanitation management in emergency periods
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ORIGINAL ARTICLE | ARTIGO ORIGINAL 221 Brumadinho disaster: contributions to public policies and sanitation management in emergency periods Desastre de Brumadinho: contribuições para políticas públicas e gestão do saneamento em períodos emergenciais Deborah Chein Bueno de Azevedo1, Graziella de Araújo Toledo1, Simone Cynamon Cohen1, Débora Cynamon Kligerman1, Telma Abdalla de Oliveira Cardoso1 DOI: 10.1590/0103-1104202012416 ABSTRACT This article aimed to analyze the vulnerability of post-disaster sanitation, adopting as a case study the experience of Brumadinho, in the state of Minas Gerais, in January 2019. It was developed from qualitative, descriptive and exploratory research, carried out through documentary analysis and a case study, through the collection of data published on institutional websites. The analysis of the components took place after the critical reading, based on aspects relevant to the approach of the article. After as- sessing the material collected it was concluded that the lack of urban planning as well as the precarious investment in actions involving basic sanitation and the lack of inspection at the Córrego do Feijão dam were determining factors in the outcome of the disaster. The mining company Vale S.A. did not have an emergency plan, which could assist in the reduction of damages and in making post-disaster decisions. Sanitation measures are essential to prevent the spread of diseases and thus minimize impacts on the affected population. Disasters from mining areas underline the importance of stricter environmental policies that promote healthy and safe environments. KEYWORDS Disasters. Sanitation. Public policy. City planning. RESUMO Este artigo objetivou analisar a vulnerabilidade do saneamento pós-desastre, adotando como estudo de caso a experiência de Brumadinho, no estado de Minas Gerais, em janeiro de 2019. Desenvolveu-se a partir da pesquisa qualitativa, de natureza descritiva e exploratória, realizada por meio de análise docu- mental e de um estudo de caso, mediante coleta de dados publicados em sítios eletrônicos institucionais. A análise dos componentes se deu depois da leitura crítica, pautada em aspectos relevantes para a abordagem do artigo. Após a apreciação do material coletado, concluiu-se que a falta de planejamento urbano assim como a precariedade de investimentos nas ações que envolvem o saneamento básico e a ausência de fiscali- zação na barragem Córrego do Feijão foram fatores determinantes no desfecho do desastre. A mineradora Vale S.A. não dispôs de um plano emergencial, que poderia auxiliar na redução dos danos e na tomada de decisões pós-desastre. Medidas de saneamento são fundamentais para evitar a propagação de doenças e, assim, minimizar os impactos na população atingida. Os desastres provenientes das áreas de mineração acentuam a importância da adoção de políticas ambientais mais rígidas, que possibilitem a promoção de ambientes saudáveis e mais seguros. 1 Fundação Oswaldo Cruz (Fiocruz), Escola Nacional de Saúde Pública Sergio PALAVRAS-CHAVE Desastres. Saneamento. Política pública. Planejamento de cidades. Arouca (Ensp) – Rio de Janeiro (RJ), Brasil. deborahcbazevedo@gmail. com This article is published in Open Access under the Creative Commons Attribution license, which allows use, distribution, and reproduction in any medium, without restrictions, as long as the original work is correctly cited. SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
222 Azevedo DCB, Toledo GA, Cohen SC, Kligerman DC, Cardoso TAO Introduction emergency situations, adopting as a case study the experience of Brumadinho, in According to the United Nations World Report the state of Minas Gerais, which occurred on Water Resources Development, the right to in January 2019. clean, safe and adequate drinking water is vital for the survival of all living organisms and for Material and methods the functioning of ecosystems, communities and economies1(84). The study is based on qualitative, descrip- tive and exploratory research, conducted However, more than two million people through document analysis, and a case worldwide do not have access to safe drink- study, through the collection of data from ing water and the number doubles when it materials published on institutional web- comes to proper sanitation facilities and sites such as the United Nations (UN), proper disposal of sewage, which further the Pan American Health Organization aggravates the unavailability of water (Paho), Brazilian Ministry of Health resources1. (MoH), Brazilian Institute of Geography Ac c o rd i n g t o t h e Wo r l d He a l t h and Statistics (IBGE), Instituto Trata Brasil Organization (WHO), access to sanitation (ITB), National Health Surveillance Agency impacts a nation’s economy and health by (ANVISA), National Information System providing a healthier environment and re- on Sanitation (SNIS), Brazilian Ministry of ducing investments in the area. This access Justice (MoJ), National Sanitation Policy generates better indicators of education, (PNS – Política Nacional de Saneamento real estate and tourism valuation, disease Básico) and the legal framework on sanita- reduction, less waste of resources and tion. The set of laws, decrees and resolu- greater job creation2. tions was considered as an integral part of The lack of adequate sanitation is one of the study. the aggravating factors of natural disasters The bibliographic research was based in Brazil, given that few cities have an ef- on the search for authors who wrote about ficient system to support heavy rainfall and/ the topic of interest, in order to support the or other extreme natural events3. discussion of the theoretical framework. From 1999 to 2009, Brazil witnessed For the case study, we used data ex- a solid economic growth cycle, in which tracted from Brumadinho City Hall, the GDP grew at an annual rate of 3.27%, while Municipality Register (2015) and the public the employed population increased at an hearing of the state of Minas Gerais, refer- annual rate of 2.29%4. This process has also ring to the sewage treatment of Brumadinho brought internal migratory movements and (2018) and the Regulatory Agency for Water rapid and disorderly urban growth. This Supply and Sanitary Sewer Services of the scenario associated with the deficiency of state of Minas Gerais (Arsae – Agência essential services—mainly basic and sani- Reguladora de Servicos de Abastecimento tation infrastructure—contributed to the de Água e de Esgotamento Sanitario). increase of anthropogenic origin disasters, The analysis of all these components which shows the vulnerability and fragility was grounded on critical reading, based in risk management5,6. on aspects relevant to the approach of the This article aims to analyze the vul- article, being alternatives in response to nerability of post-disaster sanitation and the proposed objective. propose actions to be implemented in SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
Brumadinho disaster: contributions to public policies and sanitation management in emergency periods 223 Results for their development and expansion10. Chapter 1, Art. 2 addresses urban plan- Urbanization in Brazil, which began after ning, aiming to organize the spatial distribu- the 1929 Great Depression and World War tion of population and economic activities II, brings challenges to be overcome. The to correct distortions in the urban growth national industries sharply expanded with process and control the negative effects on the policies promoted by Getúlio Vargas and the environment. Juscelino Kubitschek, after the shortages Also noteworthy is Art. 4, Chap. 2, Section generated by the war. With the production I, on the goals of urban planning, the par- expansion, as a result of the industrialization celing of land use and occupation; environ- process, there was a disorderly population mental zoning; multiannual plan; budget growth in the cities7,8. guidelines and annual budget; participatory According to data from urbanized areas budget management; sector plans, programs in Brazil, provided by IBGE, the Brazilian and projects; and economic and social de- urbanization rate jumped from 31.24% in velopment plans. the 1940s to about 85% in 2018; encouraged Art. 41, Ch. 3 of this Law shows the master mainly by the attraction that life in the city plan as an instrument of urban planning, exercised over the rural environment—where making it mandatory for cities with more the migrant populations sought quality of than 20,000 inhabitants and which are in- life, health, education and employment. This tegrated in metropolitan regions and urban fact, driven by the mass media of that period, agglomerations. made the urban environment a paradise for In 2012, Federal Law No. 12.608, which those unaware of its dynamics7-9. discusses the National Policy of Protection As a direct consequence of the urban- and Civil Defense, in its art. 42-A, incorpo- ization process, the lack of urban planning rates the promotion of diversity of uses and afflicted the cities in the country. Rapid the generation of employment and income growth has contributed to the emergence in urban planning11. of subnormal clusters, places without in- The challenge of urbanization in Brazil is frastructure, unhealthy housing conditions, largely associated with the need for territo- vulnerable to risks and disasters4,8,9. rial reorganization, so that the laws cited are The consequences of the lack of urban put into practice to promote a fair and equal planning are marked in space: excess of territory for the entire population, without vertical buildings, for better use of urban discrimination of social class, income and land; narrow, winding streets causing mobil- skin color. Integration actions between the ity problems for pedestrians and vehicles; political, economic and social sectors can poorly spaced recreational areas, located bring satisfactory results if interventions are only in upper-middle-class neighborhoods; planned, well executed and more perennial. intense slum process; housing deficit; con- structions in landslide and flooding risk Sanitation areas and lack of sanitation5. Most Brazilians do not have access to basic Urban legislation sanitation services such as water supply, sewage system and solid waste collection. In response to the problems of cities, on July The lack of these services brings health risks 10, 2001, Federal Law No. 10,257, known as and cooperate with environmental degra- the City Statute, was enacted. This Law de- dation. The transmission of diseases such termines the responsibility of municipalities as cholera, dysentery, hepatitis A, dengue, SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
224 Azevedo DCB, Toledo GA, Cohen SC, Kligerman DC, Cardoso TAO malaria, zika, chikungunya and typhoid is Janeiro and Bahia, totaling 63.3%. And the linked to problems related to poor sanitation worst investments, about 1.7%, occurred and contaminated water12. in the states of Amazonas, Acre, Amapá, In the country, investment in sanitation Alagoas and Rondônia13,15. is short. According to the National Plan for The Plansab also suggests that there has Basic Sanitation (Plansab – Plano Nacional de been a readjustment in service fees, which Saneamento Básico), approximately 40% of have been frozen for years and do not cor- the Brazilian population has no water supply; respond to the socioeconomic and demo- 60% do not have sanitary sewer; and 40% lack graphic changes that have occurred in the proper management of municipal solid waste. country in recent decades. Limitations in service management are re- In this sense, it is essential to rethink how sponsible for it13. The most common problems sanitation services can operate in emergency are the poor capacity of planning adequacy situations. and the execution of the works; the precarious inspection system regarding the use of public resources; the inability to promote sustain- Disasters able interventions; the difficulty of long-term planning; inappropriate tariffs; lack of services According to the Civil Defense command regulation and difficulty in integrating propos- and operations system, disaster is the result als from government spheres14. of a phenomenon, whether natural (such as All of these limitations result in ineffective drought, hurricanes, extreme temperatures, and unavailable service. It also alludes to high forest fires), or caused by man or even by spending, whether due to mismanagement the combination of both, which is called an of public resources or even inefficiency in adverse event, a disaster-causing phenom- their application14. enon. Thus, a particular episode such as Plansab projects the possibility of uni- heavy rain, chemical explosion, fires, dam versal access to water and waste collection disruption, or a prolonged period without in urban regions by 2030. Water supply in rain may turn into disaster, depending on rural areas could be increased by 2033, from the consequences and vulnerability of the 61% to 80%; sewage collection from 53% affected system16. They are also associated to 93% in urbanized areas and from 17% to with the intensity of human, material or 69% in rural areas; the volume of treated environmental losses due to the phenom- sewage from 53% to 93%; from 27% to 70% enon and the economic and social losses. the collection of solid waste in rural areas In emergency situations, health issues take and a reduction of losses in water supply on special characteristics. First, basic data systems, from 39% to 31%13. on the affected area should be gathered According to the Instituto Trata Brasil, after the impact of the adverse event, such the cost of universal access to sanitation as sanitation and health infrastructure and services will be R$ 508 billion from 2014 the affected population17. to 2033, with 50% of Federal investments Disasters require immediate response and 41% by other agents. Annually, the actions by public bodies to minimize loss of government should invest R$ 13.5 billion. life, as well as the definition of a location unaf- Resources from non-federal agents would fected by the event to be used as a support area, come from international loans and from where provisional shelter work will begin17. state and local governments. Currently, the Adequate facilities and technologies for restor- largest investments occurred in the states ing sanitation, such as the management of solid of São Paulo, Minas Gerais, Paraná, Rio de waste, wastewater, and drinking water, should SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
Brumadinho disaster: contributions to public policies and sanitation management in emergency periods 225 be quantified. Establishing a suitable burial of urban households had solid waste collec- site, as well as vector control, also become tion at that time. However, the percentage important health measures, as it minimizes decreases when addressing the water supply disease transmission17. and sewage sewer requirements, 76.4% and An environment with sanitation is one of 65.2%, respectively, only in the urban area. the fundamental needs in emergency situa- The rural area has a rudimentary pit to tions to protect the health of the population. collect its sewage and the water supply is Thus, it is crucial for the immediate recovery made by insurgency capture, with shallow of the affected population the reestablishment (up to 20 meters deep) and deep wells (more of the local sanitation system15. than 20 meters deep). In addition, there The occurrence of a disaster, such as the is no separation between the urban drain- one that occurred on January 25, 2019, with age network and the sewage system; which the rupture of the ore tailings dam B1, at the together with unplanned urban sprawl, Córrego do Feijão Mine complex, in the munic- population densification and riparian forest ipality of Brumadinho, Minas Gerais, owned clearing, contribute to flooding. by Miner Vale SA, reinforces the importance The city has two wastewater treatment of adopting a structured policy that enables plants (WWTP): Mirante and Ecológica, the preservation and maintenance of a safe and located in the Retiro das Pedras condo- healthy environment, especially regarding the minium (north sector, sub-basin 1 and 2; compromise of rivers and springs around the south sector, sub-basin 3, respectively). cities, as in the case of Brumadinho-MG18,19. Both are privately owned but have a 30-year service agreement with Copasa, Case study: the Brumadinho disaster since 1995. The method used is the septic tank followed by an anaerobic filter. The Brumadinho is a municipality located in the average flow, according to data from the metallurgical area of the Belo Horizonte Municipal Secretariat of the Environment21, Metropolitan Region (BHMR), state of Minas was between 3.09 and 3.96 l/s. The receiv- Gerais. Its economic activity is mining and ing bodies are the Mirante Stream and the small agriculture. Its urbanization rate cor- Ribeirão Retiro das Pedras River, belonging responds to 72.8% of its population, which is to the Paraopeba River Basin. estimated at 39,520 inhabitants20. A third WWTP was built in 2010, serving Its territorial extension is 639.4 km², being about 170 households (approximately 760 one of the largest cities of BHMR in terms people) and biologically treats, from anaerobic of area. Its territory is divided into 5 dis- digestion, domestic effluents and rainwater, tricts: Brumadinho, Aranha, Conceição do which reach the same gallery. The treatment Itaguá, Piedade do Paraopeba and São José consists in the generation of a bacterial colony do Paraopeba. It has a tropical climate and its (primary treatment), where they are stabilized, biome is the Atlantic Forest20. pass through biological filtration and aeration. The Brumadinho City Hall prepared in Afterwards, all bacteria originating from filter- 2010 the Municipal Plan for Basic Sanitation ing are retained21. (PMSB – Plano Municipal de Saneamento The last survey by Copasa, conducted in Básico) in order to plan the actions and 2008, showed that 61% of the population had define the priorities of the Municipality19. sewage collection system, and 87% in urban However, regarding basic sanitation, there areas. In locations where there is no network, is no total coverage in the municipal- especially in rural areas, septic tanks have ity. According to data from the Municipal been adopted as a means of collecting and Secretariat of the Environment13, about 95% treating effluents21. SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
226 Azevedo DCB, Toledo GA, Cohen SC, Kligerman DC, Cardoso TAO Water supply in the urban region is pro- would be January 201922. vided by Copasa through the Brumadinho Although COPASA did not conclude the Water Treatment Plant (WTP). The catch- contract for sanitation of the Municipality, ment takes place in the lake originating in 2019, the Dam 1 broke containing mining from the Manso River Basin. Conventional tailings from the Córrego do Feijão Mine, type treatment was used in the WTP, cover- located in the Ferro-Carvão stream, in the ing about 3.8 m³ of water per second. The Córrego do Feijão region18,19. sludge production is about 50 m³/day. As The tailings dam, classified as ‘low risk’ mentioned, in the rural area, households and ‘high potential for damage’, was con- are supplied from wells, and there are trolled by Vale S.A company. It is under- no restrictions on the use of municipal stood as dam: any structure in a permanent groundwater21. or temporary watercourse for the purpose Solid waste is appropriately disposed of containment or accumulation of liquid of, as the city has the only BHMR landfill substances or mixtures of liquids and solids. (which has a wastewater treatment plant), The dam break released about 12 which was built with resources from the million cubic meters of tailings, forming Growth Acceleration Program (PAC – giant waves that reached a speed of about Programa de Aceleração do Crescimento) 80 km/ hour, advancing over the refec- and started its activities in 2012. About 710.1 tory and the administrative area of the t/day of organic waste is collected and since Company, heading towards cars, houses, 1998, about 6.17 t/day of recyclable waste trees, animals and people. The mud con- has been collected by selective collection21. taminated the Paraopeba River, leaving the In 2017, a public hearing was held with water unfit for consumption in at least 20 representatives of Copasa, the executive municipalities19,23. and legislative powers and the population This has resulted in one of the largest of Brumadinho to clarify the agreement mining tailings disasters in Brazil, classified between Copasa and the Municipality to as an industrial, humanitarian and envi- obtain information on the progress of the ronmental disaster, as well as the largest implementation of the system for waste- workplace accident in the country. To date, water treatment and the lack of water in more than 228 people have been found dead several neighborhoods and localities of the and about 49 people are still missing, creat- city22. This contract signed in 2008, with a ing a situation of public calamity24,25. 30-year term, for the implementation of a complete sanitary sewer system: collection networks, interceptors, pumping stations Discussion and WWTP; encompassing the headquar- ters of Brumadinho and other areas. But In disaster situations, sanitation-related ill- only in 2015 the company signed the com- nesses can lead to preventable diseases and mitment term with the public prosecutor deaths. To this end, sanitation management to provide the municipality with a sani- contingency actions must be preventive tary sewer system suitable for the region. to avoid accidents that may compromise This agreement was canceled and, in 2018, the quality of services provided and the another public hearing was held to discuss safety of the workers involved. Such actions the environmental and social impacts that require strategic maintenance, planning, could occur in the implementation of the operational management, quality control, WWTP, since the deadline for the imple- communication support and supply. A con- mentation and operation of the WWTP tingency plan addresses scheduled actions SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
Brumadinho disaster: contributions to public policies and sanitation management in emergency periods 227 with specialized labor, materials and equip- disease. In the short term, within 6 months, ment to recover sanitation services in the services are expected to stabilize. It seeks shortest possible time12,26-28. to reduce morbidity and mortality by taking For a better response to services, post- preventive actions so that diseases do not disaster emergency stages are reported, spread. Finally, in the long term (which may divided into 3 periods (chart 1). In the im- last for years), it is expected that everything mediate phase (1 to 2 months), immediately will be normalized, that the affected popula- after the disaster, the sanitation program is tions can already return to their homes or be initial, because of the great instability in the moved to other appropriate places. The goal provision of sanitation service due to the of sanitation in this period is to promote the event and the high mortality rates. The ob- health and well-being of the inhabitants, as jective of this phase is to find a safe place to well as their self-sufficiency12. receive sanitation infrastructure to prevent Chart 1. Activities, emergency program stages and duration of disaster actions Activity Goal Phase Complete assessment checklist to set priori- Rapid assessment and priority setting Immediate ties. Produce program outline incorporating Design a program Immediate logical study, estimating sanitation require- ments, costs, staff and time. Work with experts to produce detailed Program detailing Immediate program and action plan. Select and implement immediate actions. Immediate action Short-term Implement, monitor and evaluate sanitation Implementation Short/long term program. Source: Adapted12. Water supply management in treatment process that will provide enough emergency situations for everyone; post-emergency treatment; need for disinfection of drinking water; water ac- Not enough drinking water may be available ceptance; need for places to collect and reserve to meet the basic needs of all those affected water; epidemiological considerations; reli- by the disaster. Therefore, the first aspect of ability at source; quantity and equitable access sanitation to have emergency measures is the to water12,26-28. water supply system. In this case, the correct Regarding the quality of groundwater cap- administration of the resource is important to tured by underground wells, no evidence ensure survival28. of change in quality is noticed, although it Before supplying water, it is necessary is recommended to intensify quality moni- to assess the quality of raw water and pos- toring, making sure the population receive sible sources of contamination; to carry out a potable water. SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
228 Azevedo DCB, Toledo GA, Cohen SC, Kligerman DC, Cardoso TAO Water monitoring can be done primarily in places of food preparation28. two ways: sampling and analysis (through kits When implementing an alternative method for a small amount; or laboratory for a large for the disposal of human excreta, some basic amount, which can be assembled on site)12. precautions should be taken beforehand, es- In the analysis, the quality of the water is pecially regarding availability. In the immedi- evaluated considering the pH, turbidity and ate term, 50% of the affected population is residual chlorine parameters. In the sam- expected to have access, especially in medical pling, a sanitary inspection is made, based centers and cafeterias. In the short term, 75%; on some indicators: proximity to sources of in the long term, 95%, being 100% in medical fecal contamination, color, smell, presence of centers and cafeterias12,28. dead fish or animals, debris, etc.; thus, water For the sanitary sewer, some measures quality can be deduced27. are a priority: 1) in post-disaster assembled settlements, sanitation facilities should be Sanitary sewer management in established immediately; 2) to design and emergency situations build sanitary facility shelters after an as- sessment of the topography, location of After establishing the parameters for water groundwater reserves to avoid contami- collection and treatment, sanitary sewer nation; 3) to design the sanitary facilities must be a priority. Some points should be aiming to avoid any contact with possible considered, such as: socio-political issues; vectors; 4) to evaluate all technical options area availability; soil conditions; material for the construction of toilets, with aimed availability; cultural issues; financial issues; at minimizing threats to users, especially human resources; system operation and women, children, people with mobility maintenance12,28. impairment and those in charge of main- The area reserved for toilets must meet tenance; 5) to collect data on the affected some criteria, such as: distance from water population to build an adequate number of reservoirs and water treatment units to toilets that minimize risks to public health avoid contamination (minimum distance is (chart 2); 6) to include a soapy water reser- 50 meters); they should be installed in loca- voir for hand cleaning, as well as intimate tions below subdivisions and water sources; hygiene material; 7) if possible, to accom- away from roads and public buildings; outside modate people with chronic diseases and agricultural fields; far from water, food and older adults closer to the toilets12,26,28. Chart 2. Quality criteria, quantity and use of sewage disposal sites Criterion Immediate Short Term Long Term Quality Latrine with technically basic Appropriate and sustainable Appropriate technology; material; technology such as Biodigester Socially accepted; Socially acceptable; Septic Tank (BST) and Evapo- Without Risk to Health; Basic health protection; transpiration Basin (ETB) up to Up to 3 Years. Sustainable Technology up to 1 6 months; month. Socially acceptable; Minimal Health Risk. SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
Brumadinho disaster: contributions to public policies and sanitation management in emergency periods 229 Chart 2. (cont.) Criterion Immediate Short Term Long Term Quantity For medical centers: 1 latrine per For medical centers: 1 toilet for For medical centers: 1 toilet for 50 beds or 100 patients. 20 beds or 50 patients. 10 beds or 20 patients. For schools, 1 latrine for 50 girls Schools: 1 toilet for 30 girls and Schools: 1 toilet for 15 girls and and 1 for 100 boys. 60 boys. 30 boys. Cafeterias: 1 latrine for 100 Cafeterias: 1 toilet for 50 adults Cafeterias: 1 toilet for 20 adults adults and 1 latrine for 50 chil- and 1 toilet for 20 children. and 1 for 10 children. dren. Offices: 1 toilet to 20 employees. Usage 50% of the affected popula- 75% of the affected population; 95% of the affected population; tion; 100% medical centers and 100% medical centers and caf- 100% medical centers and caf- cafeterias. eterias. eterias. Source: Adapted12. Regarding sanitary sewer in the munici- Policy, Law No. 12.305, waste can be discard- pality of Brumadinho, it was not affected ed materials, substances, objects or goods by the dam rupture, although the company that result from community activities and responsible, Copasa, has not yet completed are classified according to their origin and the sanitation work, as provided for in the hazardousness29. For this discussion, we contract. will consider only the waste from the Dam Proper and efficient decision-making of 1 disruption, since the solid waste from the emergency actions involving basic sanita- Municipality of Brumadinho already has tion has great importance to public health. proper disposal, that is, the BHMR landfill. Mainly, the spread of sanitation-related dis- Solid waste from mining activity is divided eases is to be avoided, which are transmitted into: sterile and tailings. Barren are exca- via the fecal–oral route (diarrhea, bacillary vated materials from mining activity in the dysentery, shigellosis and hepatitis), skin and mine stripping, and are usually arranged eye diseases (scabies and other skin infec- in piles. The tailings are the result of the tions), soil (hookworm diseases), diseases beneficiation process to which the mineral spread by rodents (typhus, leptospirosis and substances are submitted. The disposal of bubonic plague), and also by water transmis- tailings in reservoirs created by dikes or sion, vectors that reproduce in poor sanita- dams is the most commonly used method tion environments (malaria, dengue, yellow in the country. These dams or dikes may be fever, zika and chikungunya)28. made of natural soil or constructed from the tailings themselves and are classified in this Management of solid waste and case as tailings-containing retention dams, tailings in emergency situations and in the other case as conventional dams30. For the waste from the dam rupture, Solid waste management, as well as water there is no management plan for the tail- supply and sanitary sewer, are essential in a ings so far. They are still at the disaster disaster situation28. site and Vale, according to the Arsae-MG According to the National Solid Waste report, has not notified any measures for SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
230 Azevedo DCB, Toledo GA, Cohen SC, Kligerman DC, Cardoso TAO the final disposal of these wastes. Final considerations According to information from the State Secretariat for the Environment The lack of adequate urban planning proves to and Sustainable Development (Semad – be an aggravating factor in disaster situations, Secretaria de Estado de Meio Ambiente as it leads to population occupation in more e Desenvolvimento Sustentável), the Vale vulnerable areas, such as river banks, hillsides dam tailings have traveled for 125 km from and areas near tailings dams. the rupture site to the Paraopeba River. This Proper management of post-disaster en- river flows into the Três Marias Dam res- vironmental sanitation is essential for public ervoir, 330 km from Brumadinho. Officials health actions, as it can minimize the impacts and public agencies expect these wastes that could aggravate the scenario in disaster to be contained by the Retiro Baixo Power situations. Plant, located on the Paraopeba River (300 Another important factor that should be km from the catastrophe site), thus prevent- considered is the lack of investments in basic ing pollution from reaching the Três Marias sanitation, since every R$ 1.00 invested in Lake and the São Francisco River. This mud sanitation saves R$ 9.00 in health32. With from ore tailings has a high concentration this investment it is possible to reduce the of heavy metals, which can cause a series of incidence of diseases and make the care of harms to human health, as well as irrevers- those most affected a priority, resulting in ible damage to the environment. optimization of time, material and labor, as As previously reported, the planning of well as reducing hospitalizations and spend- disaster risk reduction actions is critical ing on public health. to the success of life-saving activities and In Brazil, there are 24,000 dams, accord- emergency operations, as it enables them to ing to the Dam Safety Report, of which only prepare in advance the actions required to 13,997 (58%) are in good standing. Also, 204 minimize the impacts of disaster relief17,31. dams have structural problems, 45 of which In emergency situations caused by a di- are located in the state of Minas Gerais. saster, such as the one in Brumadinho, it is Emergency measures need to be carried common for the water supply to be inter- out so these dams can go through specific rupted due to damage that may be caused technical inspection processes more often, to the distribution network. Therefore, the in order to avoid other human-induced di- time needed to restore conditions prior to sasters, such as those at Brumadinho and the event imply the need to carry out alter- Mariana. Those disasters caused deaths, as native ways of water supply and/or storage. well as endangering neighboring popula- The same is true for the sewage system13,16. tions, and caused environmental degradation In Situation Report No. 01, by Arsae-MG, in these areas. Reduction of vulnerability an agency that acts in the regulation and can be achieved through mitigation and supervision of water supply and sewage ser- preparedness measures17,24. vices in the municipalities, it was informed In the country, many factors contribute that the headquarters of Brumadinho has, to the increase of vulnerability and impacts so far, a system of water supply, which is of disasters due to lack of urban planning. collected in the Águas Claras stream. The When analyzing the vulnerability of a com- information is that the water supply system munity, human factors must be considered, was interrupted only for a few hours due as they generally influence the severity of to unavailability of electricity. As soon as a disaster. electricity was restored, water distribution Thus, in order to reduce the risk of disas- was normalized19. ters, the relations between sanitation, public SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
Brumadinho disaster: contributions to public policies and sanitation management in emergency periods 231 health and the environment constitute an quality monitoring study on the waters from initial and important step in the develop- the region’s watershed. ment of a health planning model. In terms Disasters from mining areas underline the of plans, the identification and analysis of importance of stricter, better structured and the effects of implementing a particular enforced environmental policies that promote system—be it water supply, sewage and solid healthy and safer environments. waste collection/treatment—should provide the means to establish priorities and point the most appropriate direction, since each Collaborators beneficiary population has distinct char- acteristics and sanitation actions cannot Azevedo DCB (0000-0002-9768-4757)*, always be oriented in the same way. Toledo GA (0000-0002-0842-6108)*, Cohen Considering the severity of the event at SC (0000-0001-6228-6583)*, Kligerman DC the Córrego do Feijão dam, it is currently (0000-0002-7455-7931)* and Cardoso TAO impossible to measure the impacts caused (0000-0002-5430-7273)* have contributed to the springs of the affected municipali- equally to the conception, data collection, ties. The municipal and state spheres should preparation and writing the draft, critical prepare, together with the company respon- review of content and approval of the manu- sible for the BHMR water supply system, a script’s final version. s *Orcid (Open Researcher and Contributor ID). SAÚDE DEBATE | RIO DE JANEIRO, V. 44, N. 124, P. 221-233, JAN-MAR 2020
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